Problem-Oriented Policing to Reduce Crime in Nashville, TN

Introduction

The United States has made significant strides in reducing crime rates across its municipalities over the last three decades. Data from the Federal Bureau of Investigation (FBI) indicates that violent and property crime rates decreased dramatically between 1993 and 2019 (Gramlich, 2020). The rate of property crime fell 71 percent, while that of violent crime fell 49 percent, with large decreases reported in the rates of aggravated assault (43 percent), murder (47 percent), and robbery (68 percent) (Gramlich, 2020). Generally, the US can be regarded as safer for its citizenry today than it was in the 1990s (Gramlich, 2020).

Despite the efforts of law-enforcement officers, however, crime rates remain relatively high in some American cities. The ongoing COVID-19 pandemic has adversely affected the livelihoods of millions of Americans, and a growing number of citizens face hunger and eviction. It is not surprising, then, that crime rates remain intractable in cities such as Nashville, Tennessee, where unemployment rates were already a concern before the pandemic. Nashville is now ranked among the most unsafe cities in the United States (Nashville Crime Rates, 2021). Studies have found the city to be more dangerous to live in than 97 percent of cities of comparable size (Nashville Crime Rates, 2021). The aim of this study is to analyze the situation in Nashville and to identify optimal strategies for implementing a problem-oriented policing intervention to help reduce crime rates in the city.

Located in the north-central part of Tennessee, Nashville is the state capital and home of the world-famous entertainment venue, the Grand Ole Opry. As the overall rate of crime in the US and other comparable cities fell, the year-over-year crime rate in Nashville remained more or less the same (Area Vibes, 2020). Data released by the FBI in December 2020 shows that the crime rate in Nashville was 105 percent higher than the national average (Area Vibes, 2020). Both violent and property crimes in the city exceed the national average by 183 percent and 92 percent, respectively (Area Vibes, 2020). A resident in Nashville is five times more likely to become a victim of crime than someone living in another city of comparable size (Area Vibes, 2020). As is the case with much of the rest of the country, property crime remains more common than violent crime in Nashville; nonetheless, 1 in 94 residents is still likely to be a victim of violent crime (Neighborhood Scout, 2020).

The ongoing COVID-19 pandemic has increased unemployment levels and mental health issues, raising concern that Nashville city leaders face a serious security problem beyond the pandemic itself. While the costs of property crimes are quantifiable, the costs associated with violent crime transcend individual economic calculus and extend to harm entire neighborhoods. According to the US Office of Disease Prevention and Health Promotion, "people who survive violent crime endure physical pain and suffering, and may also experience mental distress and reduced quality of life" (ODPHP, 2020, para. 2).

Although there are no law-enforcement measures capable of completely eliminating violent crime (Giwa, 2018), a growing body of scholarship confirms that problem-oriented policing represents an evidence-based approach to combating this societal issue. This study hypothesizes that problem-oriented policing could be beneficial in reducing the rate of crime in Nashville. As such, the study proposes a field test of a problem-oriented policing crime reduction program for Nashville, which can be used to evaluate its appropriateness for city-wide implementation. The subsequent sections present a systematic review of relevant literature on problem-oriented policing, followed by guiding research questions, subjects for study, measurement of variables, data collection and analysis methods, and a proposed schedule and budget for the field test.

Literature Review

This literature review comprises three subsections. The first reviews literature on problem-oriented policing and how it differs from conventional policing, while the second and third deal with the SARA model of problem-oriented policing and its relevance to Nashville's current situation.

There is broad agreement in the literature that no single law-enforcement strategy can completely eliminate violent crime (Giwa, 2018; Braga et al., 1999; Hinkle, Weisburd, & Telep, 2020). Giwa (2018), however, notes that in response to an increasing violent crime problem in some American cities, a number of problem-oriented policing initiatives have been implemented over the past 40 years. Hinkle et al. (2020) define problem-oriented policing as a framework in which law-enforcement authorities apply community-based strategies and tactics focused on providing proactive solutions to chronic sources of violent crime, rather than relying solely on conventional policing techniques.

According to Reisig (2010), unlike conventional policing techniques — which focus strictly on quantifiable factors such as the number and type of arrests and average response times — the overarching objective of problem-oriented policing is to concentrate available law-enforcement resources on improving community safety and reducing violent crime. Nonetheless, problem-oriented policing strategies draw on many of the same theoretical foundations as conventional law-enforcement methods (Reisig, 2010). Proponents of problem-oriented policing argue that while it is important to maintain timely and accurate statistical analyses of crime rates in order to identify salient trends, it is also essential to identify the specific sources of violent crimes and take directed actions to eliminate them before they manifest into violent incidents (Reisig, 2010). Reisig (2010) agrees with Hinkle et al. (2020) that problem-oriented policing strategies do not replace conventional law-enforcement methods but rather supplement and enhance them in ways that promote community safety in meaningful ways.

Although every law-enforcement scenario differs, problem-oriented policing strategies generally revolve around the use of the Scan, Analysis, Response, and Assessment (SARA) model (Hinkle et al., 2020). SARA is a rational method of systematically identifying and analyzing problems, developing specific responses to individual problems, and assessing the effectiveness of those responses (Burton & McGregor, 2018). Scanning refers to the identification of problems that drive criminal activity and is often conducted through officer detection or calls for service (Brandon, 2015). Analysis involves examining the identified problem and determining an effective plan of action (Brandon, 2015). The response phase involves putting the plan into action (Brandon, 2015). Assessment involves evaluating whether the implemented solution was effective (Brandon, 2015).

Constant monitoring and evaluation are crucial in the SARA model as a means of determining whether solutions have been successful. A number of police agencies across the world — including Transport for London, the City of London Police, the Metropolitan Police Service, and the British Transport Police — have successfully implemented problem-oriented policing strategies and won international recognition as a result (Burton & McGregor, 2018).

The SARA model of problem-oriented policing is popular among law-enforcement agencies for its simplicity and user-friendliness (Brandon, 2015). Moreover, its application in real-world settings has consistently demonstrated effectiveness in reducing crimes in general and violent crimes in particular (Hinkle et al., 2020). Studies have also found the approach effective in reducing traffic-related misdemeanors when applied by Transport for London (Burton & McGregor, 2018). The differences in outcomes achieved using problem-oriented policing strategies have largely been attributed to differences in implementation and the specific types of violent crimes involved, rather than to any weakness in the fundamental tenets of the approach (Hinkle et al., 2020). However, practitioners must be careful not to overlook the significance of some problems or exaggerate others during the scanning and analysis phases, as this could lead to an unfair oversimplification of complex crime problems (Brandon, 2015).

Sources contend that problem-oriented policing models are highly relevant to addressing crime in contemporary American society (Jacobs & Kim, 2020; Boyce, 2019; Schnobrich-Davis & Block, 2020). First, amid ongoing debates about defunding the police, determining which criminal justice research and evaluation methods are most effective represents a timely and valuable exercise, particularly because taxpayer resources are, by definition, scarce (Jacobs & Kim, 2020). Any public perception that resources are being committed to obsolete or ineffective law-enforcement strategies is a significant source of concern for police leaders (Boyce, 2019). Moreover, the problem-oriented model of policing provides useful evaluation methods that can help identify opportunities for community-based interventions specifically focused on violent crime (Schnobrich-Davis & Block, 2020). Furthermore, problem-oriented policing evaluation techniques are highly congruent with other recent trends in criminology. All these factors provide a rationale for implementing a problem-oriented policing strategy in Nashville.

Research Questions

Based on the alarming property and violent crime statistics in Nashville, the rising unemployment levels due to the ongoing pandemic, and the demonstrated appropriateness of problem-oriented policing for the contemporary American context, the study is guided by the following research questions:

Q1: What neighborhoods in Nashville experience the highest violent crime rates?

Q2: What are the current policing strategies in place in Nashville?

Q3: What are the attitudes of police officers in Nashville towards the policing strategies currently in place in the city?

Q4: What valuable lessons could be drawn from American cities of comparable size to Nashville that have applied the problem-oriented policing approach?

Q5: What actions do local business leaders, civic groups, and organizations believe need to be taken to address the crime problem in Nashville?

The open-ended nature of the research questions is designed to ensure that the study collects as much insight as possible from stakeholders regarding their attitudes, feelings, and understanding of the security situation in Nashville (Lavrakas, 2008).

Conclusion and Project Plan

Nashville has one of the highest rates of violent crime in the United States. While the rest of the country reported dramatic declines in violent and property crime rates, Nashville's crime rate remained more or less the same over the last two decades. Both violent and property crimes in the city exceed the national average by 183 percent and 92 percent, respectively. A resident in Nashville is five times more likely to become a victim of crime than someone living in another city of comparable size.

The aim of this study is to analyze the situation in Nashville and to identify optimal strategies for implementing a problem-oriented policing intervention to help reduce crime rates. Amid ongoing debates about police funding, determining which criminal justice research and evaluation methods are most effective represents a timely and valuable exercise. Any public perception that resources are being committed to obsolete or ineffective law-enforcement strategies is a significant source of concern for police leaders. The problem-oriented model of policing provides useful evaluation methods that can help identify opportunities for community-based interventions specifically focused on violent crime. This study hypothesizes that problem-oriented policing would be an invaluable option for addressing the high crime rate in Nashville.

1–14 January 2021: Conduct a thorough review of literature to identify potential causes of Nashville's high crime rate, solutions proposed in the literature, and research gaps.

15–31 January 2021: Begin drafting the proposal and obtaining continuous feedback from colleagues and supervisor.

1 February – 5 March 2021: Draft final report, schedule, and budget; develop questionnaires.

5 March 2021: Present final report, budget, and schedule to the budget office for approval.

15 March – 15 April 2021: Defend and make edits to proposal and budget as necessary.

18 April 2021: Conduct pilot test.

24 April – 7 May 2021: Run the online questionnaire on SurveyMonkey; collect data.

10–20 May 2021: Conduct data analysis and finalize report.

20–30 May 2021: Submit report for compliance check and review.

1–15 June 2021: Apply for journal publication; disseminate findings to stakeholders.

The research budget is projected at a total cost of $630, broken down as shown below. Training costs, material costs, personnel, and travel/accommodation are projected to account for the largest proportion of the budget, representing 68 percent of the total.

Personnel Costs ($100): Payment to three research assistants and three field staff involved in data collection and analysis (25 days of engagement).

Training Costs ($100): Training research assistants and project team on voluntary participation, informed consent, use of SurveyMonkey, research methodology, and data analysis.

Travel and Accommodation ($200): Reasonable rail fare and overnight accommodation for the lead researcher and project team members in Nashville to promote the proposed study.

Material Costs and Administration ($100): Rental of three tablets for research assistants to monitor response rates and correspondence; mobile internet modem, portable hard drive, digital camera, printing paper, cell phone usage, and antivirus software.

Honoraria ($30): Ex-gratia payments to contributors not formally tied to the program, such as keynote speakers (e.g., police chiefs) who will encourage their colleagues to participate in the study.

Data Collection and Analysis Costs ($60): Costs related to data collection and analysis, including the cost of fielding the survey on SurveyMonkey.

Journal Application Fees ($30): Costs related to publication of research findings.

Printing and Binding of Report ($10).

Total Research Project Cost: $630.

Area Vibes (2020). Crime in Nashville. Area Vibes. Retrieved from

Boyce, A. (2019). A re-imagining of evaluation as social justice: A discussion of the Education Justice program. Critical Education, 10, 37–42.

Braga, A. A., Weisburd, D. L., & Waring, E. J. (1999). Problem-oriented policing in violent crime places: A randomized controlled experiment. Criminology, 37(3), 541–555.

Brandon, D. (2015). The use and effectiveness of problem-oriented policing. Criminology and Criminal Justice, 7(4), 1–2.

Burton, S., & McGregor, M. (2018). Enhancing SARA: A new approach in an increasingly complex world. Crime Science, 4(1). https://doi.org/10.1186/s40163-018-0078-4

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Giwa, S. (2018). Community policing in racialized communities: A potential role for police social work. Journal of Human Behavior in the Social Environment, 1–17.

Gramlich, J. (2020, November 20). What the data says (and doesn't say) about crime in the United States. Pew Research Center. Retrieved from https://www.pewresearch.org/fact-tank/2020/11/20/facts-about-crime-in-the-u-s/

Hinkle, J. C., Weisburd, D., & Telep, C. W. (2020). Problem-oriented policing for reducing crime and disorder: An updated systematic review and meta-analysis. Campbell Systematic Reviews, 16(2), 37–44.

Jacobs, L. A., Kim, M. E., & Whitfield, D. L. (2020). Defund the police: Moving towards an anti-carceral social work. Journal of Progressive Human Services, 32(1), 19–22.

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Neighborhood Scout (2020). Nashville crime rates. Neighborhood Scout. Retrieved from https://www.neighborhoodscout.com/tn/nashville/crime

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ODPHP (2020). Crime and violence. U.S. Office of Disease Prevention and Health Promotion. Retrieved from https://www.healthypeople.gov/

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Schnobrich-Davis, J., & Block, S. (2020, September). Analysis of Herman Goldstein problem-oriented policing awards from 1993–2017. Policing: A Journal of Policy and Practice, 14(3), 616–629.

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